The Bureaucracy in the Shadow State: Invisible Administration under Conditions of Power

Abstract

This article explores the role of the Thai bureaucracy within the context of the “shadow state,” referring to hidden structures of power that exist beyond formal constitutional and legal frameworks but significantly influence national policy and administrative decisions. Drawing on the perspective of critical public administration, this study reveals how bureaucratic authority is rendered invisible through legal justification, discursive practices, and institutional rituals. These include the use of formal language, hierarchical structure, and symbolic representations that collectively reinforce the perceived neutrality and legitimacy of the bureaucracy. Moreover, the article analyzes the interrelations between the bureaucracy and other power structures—such as the military, judiciary, independent agencies, and economic elites—highlighting how these connections support the formation of an undemocratic order. The findings suggest that understanding the bureaucracy as a component of the shadow state is essential for interrogating the legitimacy of administrative power and for envisioning a more transparent and accountable public administration aligned with democratic governance and good governance principles